Founded in 1921,the Council on Foreign Relations is an independent,national member-ship organization and a nonpartisan center for scholars dedicated to producing and dis-seminating ideas so that individual and corporate members,as well as policymakers, journalists,students,and interested citizens in the United States and other countries,canbetter understand the world and the foreign policy choices facing theUnited States and other governments.The Council does this by convening meetings;conducting a wide-ranging Studies program;publishing
Foreign Affairs
,the preeminent journal covering international affairs and U.S.foreign policy;maintaining a diversemembership;sponsoring Independent Task Forces;and providing up-to-date informationabout the world and U.S.foreign policy on the Council’s website,www.cfr.org. THE COUNCIL TAKES NO INSTITUTIONAL POSITION ON POLICY ISSUESAND HAS NO AFFILIATION WITH THE U.S.GOVERNMENT.ALL STATE-MENTS OF FACT AND EXPRESSIONS OF OPINION CONTAINED IN ITS PUB-LICATIONS ARE THE SOLE RESPONSIBILITY OF THE AUTHOR OR AUTHORS. This volume is the sixth in a series of Council on Foreign Relations Policy Initiatives (CPIs)designed to encourage debate among interested Americans on crucial foreign policy top-ics by presenting the issues and policy choices in terms easily understood by experts andnonexperts alike.The substance of the volume benefited from the comments of several ana-lysts and many reviewers,but responsibility for the final text remains with the author.Other Council Policy Initiatives:
A New National Security Strategy in an Age of Terrorists, Tyrants, and Weapons of Mass Destruction
(2003),Lawrence J.Korb,Project Director;
Reshaping America’s Defenses: Four Alternatives
(2002),Lawrence J.Korb,Project Director;
Humanitarian Intervention
(2000),Alton Frye,Project Director;
Future Visions for U.S. Defense Policy
(1998;revised,2000),John Hillen and Lawrence J.Korb,Project Directors;
Toward an International Criminal Court
(1999),Alton Frye,Project Director;
Future Visions for U.S. Trade Policy
(1998),Bruce Stokes,Project Director.Council Policy Initiatives are distributed by Brookings Institution Press (1-800-275-1447).For further information about the Council or this book,please write to the Council on For-eign Relations,58 East 68th Street,New York,NY 10021,or call the Director of Commu-nications at 212-434-9400.Visit our website at www.cfr.org.Copyright © 2004 by the Council on Foreign Relations®,Inc.All rights reserved.Printed in the United States of America. This report may not be reproduced in whole or in part,in any form beyond the reproduc-tion permitted by Sections 107 and 108 of the U.S.Copyright Law Act (17 U.S.C.Sections107 and 108) and excerpts by reviewers for the public press,without express written per-mission from the Council on Foreign Relations.For information,write to the PublicationsOffice,Council on Foreign Relations,58 East 68th Street,New York,NY 10021.
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